SPectrum S o c i a l P r o t e c t i o n T h e W o r l d B a n k W i n t e r 2 0 0 1 The Global Fight Against Child Labor Social Protection is a collection of measures improve to or protect human capital, ranging from labor market interventions and publicly mandated unemployment or old-age insurance to targeted income support. Social Protection assist interventions individual, households, and communities manage to better the risks that leave people vulnerable. Cover Photo: Anne Kielland An African girl selling fruits at a market place. It is esti- mated that at least 120 million children in developing countries work full-time. When part-time work is included, this figure rises to 250 million. The real test of development can be measured not by the bureaucratic approval process Contents but by the smile on a child's face. --James D. Wolfensohn, President The World Bank They Call It a Revolution Brazil's Program to Eradicate Child Labor attacks poverty at its roots, with unexpected results. 5 Bolsa Escola Financial incentives enables Brazilian families to keep their children in school. 9 Keeping Children in School Indonesian children are given top priority during the East Asian financial crisis 10 Indonesia Takes a Stand Against Child Labor. 11 Great Expectations Under the leadership of Zafiris Tzannatos, the World Bank is adding its expertise and financial capabilities to the fight against harmful child labor. 13 The World Bank and Children 14 The Sad Facts 14 Child Protection in the Regions 15 The Global Child Labor Program 16 Children's Week 2000: The Search for Solutions The search for solutions to the global problem of child labor has been long and arduous, but Children's Week 2000 showed that glimpses of hope are beginning to surface. 19 ILO Convention No. 182 20 The Rugmark Foundation 21 Child Trafficking and Child Soldiers 21 The Last Vestige of Slavery U.S. Senator Tom Harkin, the driving force behind the new U.S. trade policy incorporating the protection of children, has helped place child labor at the top of the U.S. agenda. 23 The Interagency Cooperation Program: A United Front Against Child Labor* The opening of a new interagency research project in Florence, Italy, will mark the creation of a historic alliance in the fight against child labor. 25 Child Labor's Impact on Health: A Growing Concern 27 A Donor's Vision on Child Labor The Norwegian Minister of International Development, Anne Kristin Sydnes, writes on why the protection of children is the best investment. 30 Oslo Conference on Child Labour Agenda for Action * 31 The Invisible Girl The international community seeks ways to address the harmful conditions of the millions of domestic child workers in Africa. 33 Sound Labor Practices and the Bottom Line: The private sector addresses harmful child labor. 36 The World Bank and Partnerships* 39 SPectrum's Resource Guide 40 *From the Global Child Labor Program's "The World Bank and Children" (2000) 1 New Child Labor and Protection website launched Please visit the website at www.worldbank.org/childlabor for: World Bank Child Protection Initiatives, including the Global Child Labor Program and Regional Initiatives Tools & Information Resources, including World Bank child labor-related publications Notes News & Events, including seminar and conference information Related Links News Launch of New SP Strategy In an effort to broaden understanding of the World Bank's new Social Protection Strategy, a press launch was SP held in Washington D.C. on January 24, 2001. The strategy is one of the Bank's responses to the economic crises in the 1990s and is part of the latest World Development Report on Poverty. It signals a shift towards strengthening social safety nets and giving the poor new tools to escape of the poverty trap. The strategy was presented to the media by a World Bank team consisting of Human Development Network Vice President Eduardo Doryan, Social Protection Sector Director Robert Holzmann, and Lead Specialist Laura Frigenti, Africa Region. The launch was chaired by Senior External Affairs Officer Philip Hay. Among the media reporting on the new strategy was the German newspaper Frankfurter Allgemeine Zeitung, Reuters, Associated Press, Chicago Tribune, BBC Radio, UN Radio and Voice of America. Earlier in January, the new strategy had been launched at a workshop for Bank staff on January 9, 2001, which was opened with a speech by Nicholas H. Stern, World Bank Sr. Vice President and Chief Economist. But as Director Robert Holzmann remarked, with the launch of the Social Protection Strategy Paper, the true work -- implementation -- is only starting. For a free copy of the Social Protection Strategy Paper "From Safety Net to Springboard," please contact the Social Protection Advisory Service by email at: socialprotection@worldbank.org The World Bank is Looking For A Full-time Disability Advisor People with disabilities in developing countries are disproportionately represented among the poorest of the poor. In order to accelerate the infusion of concerns about poor people with disabilities into the World Bank's mainstream poverty alleviation efforts and to continue to encourage disability-specific activities, the Bank is creating a full-time Disability Advisor position. The scope of the position covers all aspects of work on disabil- ity in the World Bank, including social protection, education, labor, health, communications, transport, gender and post-conflict recovery. The Bank is looking for a well-qualified individual whose professional credentials are complemented by personal experience with disability. The position requires a minimum 10 years of relevant work experience and recognized and respected expertise on the topics of economic development and poverty reduction in develop- ing countries; human development, particularly disability and development; and knowledge management. Qualified applicants will hold an advanced degree (M.A./M.S.) or equivalent in economics or another social science; Ph.D. preferred. For more information visit www.worldbank.org/sp and click on "Disability" Or e-mail disabilitygroup@worldbank.org 2 Welcome The Search for Solutions Dear Reader, In recent years, international institutions including the World Bank have increasingly focused attention on the issue of child labor. In 1998, the World Bank created the Global Child Labor Program in order to join many other international and national organizations in the battle against Photo: Robert Radifera child labor, which is one of the most devastating consequences of persistent poverty. The Global Child Labor Program draws on the World Bank's strong analytical expertise and financing capabilities to confront harmful child labor. Though in its infancy, the Program supports research and analyses, pilot studies, evaluations, and dissemination through training and seminars. Policy conclusions derived from these projects feed into the World Bank's dialogue with clients and donors, country assistance strategies and lending activities. Last April, the Program hosted its first international conference, "Child Protection and Child Labor: The Search for Solutions," devoted entirely to children's issues (p.19). This issue of SPectrum provides an overview of the Program focusing on solutions. These solutions require a strong national commitment (see, for example, the cases of Brazil and Indonesia, p. 5 & p. 11). But, there is also a great deal that the international community can do. In this respect, an important development is the groundbreaking cooperation between the World Bank and two of the leading organizations in this area, the International Labour Organization (ILO) and UNICEF. Together, the three partners have established an interagency program--the `Understanding Children's Work' (UCW) Project based at UNICEF's Innocenti Research Center (formerly known as the International Child Development Center) in Florence, Italy. This cooperation is expected to create better tools for measuring and analyzing child labor, and to add to the understanding of effective practices and programs for reducing child labor (p.25). The importance of partnerships cannot be underestimated; I firmly believe that no institution act- ing alone can solve the enormous problem of child labor. The World Bank also recognizes that while international development institutions can play an important role, the countries themselves must take the lead in identifying priorities. Then, the World Bank and its partners, can effectively work to assist them with knowledge and financial resources. I trust that you will find hope and inspiration in reading this issue of SPectrum on strategies to combat harmful child labor. Yours truly, Robert Holzmann 3 4 They Call It a Revolution by Lotte Lund Brazil's Program to Eradicate Child Labor Attacks "The program has been so successful that now our prob- Poverty at its Roots with Unexpected Results lem is how to ensure that the children can continue their education after they turn 14 years, so that they will not The town of Conceição do Coité lies at the very heart of have to go back to work in the sisal," says the mayor and Brazil's sisal production. Located in Bahia, the north- points attention to a widely recognized problem. eastern state long infamous for using child labor in highly dangerous conditions, the Programa de Guilherme Sedlacek, World Bank Senior Education Erradicação do Trabalho Infantil (PETI) or Child Labor Economist, who has provided technical assistance for Eradication Program, is eradicating the worst forms of the program acknowledges that this is indeed a problem. child labor at such a speed that it is considered nothing "There is no easy solution. It will require improved edu- short of a revolution. UNICEF and the International cational opportunity for the children wanting to contin- Labour Organization (ILO), are calling PETI a model for ue in school and enhanced availability of jobs to give other parts of the world after having evaluated the results. poor children a fair opportunity to enter the labor mar- ket after completing basic education," says Sedlacek. Cutting, piling and hauling the long, leathery and nee- dle-sharp sisal plants used for rugs, rope and handbags Started in the Hinterlands commonly results in punctured eyes, as well as other Begun in 1996, in the charcoal pit extracting industry of serious injuries from using the sharp-bladed knives and the Mato Grosso do Sul, where children were working processing machines used in the fields. The sight of chil- under highly dangerous conditions, the national PETI dren with missing fingers, scarred legs, amputated arms program now reaches over 300 municipalities in twenty- and blinded eyes are common in the sisal growing six states, providing assistance to 267,134 working chil- regions. But not here in Conceição do Coité. dren, according to a 1999 World Bank report. In this, PETI's first phase of implementation, the government Because of PETI, all children in Conceição do Coité plans to further extend PETI to an estimated 866,000 between the ages 7 and 14 years now attend school and children working under the most harmful conditions. harmful child labor is becoming a thing of the past. The second phase aims at eradicating the problem by The program provides schooling and after-school activi- the end of 2002. The ambitious plan will cost the gov- ties, as well as transportation for children living as far as ernment an estimated US$ 1 billion in its first phase, 60 kilometers away. Three times a day the children are and another US$ 1 billion in the second phase which is served meals, which better the children's ability to con- planned to continue to the end of 2006. thur centrate and learn. MacAr Ian The mayor of Conceição do Coité, Ewuerton Rios de Photo: Araujo Filho and his first lady, proudly show us around the premises of a new after-school facility where the children can play and do their homework with the assis- tance of educational supervisors. The facility is a simple, white building with a large room with tables, chairs, educational materials and toys. Outside the children UNICEF has evaluated play in a playground. Brazil's Child Labor Eradication Program, and UNICEF Representative to Brazil, Reiko Niimi, calls the In the town of Conceição do Coité in the northeastern part of Brazil, child program a model for labor is now a thing of the past other parts of the world. because of the government's ambitious child labor eradication program. The children are now able to attend school Photo: Lotte Lund and one of the program's after-school centers. 5 PETI is run by the Ministry of Social Assistance which also coordinates related initiatives in the Ministries of Health, Education and Labor. The Ministry's basic phi- losophy is that child labor perpetuates poverty across generations and is caused chiefly by lack of access to education. The government hopes that by 2006, families can be "de-linked" from the program and made self-suf- ficient through integrated support, vocational training, and job creation. "We are putting a time-limit on the program because we do not want to perpetuate the situation for the family," says Christina Maria Albuquerque, manager of PETI for the Ministry of Social Assistance in Brasilia. She con- cedes, however, that "we are facing structural problems when it comes to income and job generation. But the most difficult part is our ambition to upgrade the whole family. That is where the real problems lie: that the par- ents often have less than five years of education." PETI grew out of a large social movement in Brazil that started focusing on the rights of children during the 1980s. In 1990, Brazil took a historic leap, enacting the Statute of the Child and Adolescent (SCA), today con- sidered the best legislation for adolescents in Latin America. The fight against child labor was further strengthened in 1994 with a broad alliance, the National Forum on the Prevention and Elimination of Child Labor. The Forum promoted concerted action between the government and civil society. In 1996, the forum gave rise to PETI. Today 40 organizations, including UNICEF and ILO, participate in the Forum. The PETI program uses monetary incentives in its attack on the vicious cycle of poverty and child labor by rewarding poor parents -- broadly defined as those earning up to half the minimum wage -- on the condi- PETI Poem tion that their children aged 7 to 14 attend school and an after-school program full time. If the conditions are God bless all schools, met, the mother will receive a stipend equivalent to bless Bolsa Escola US$13.50 per child. Monitoring school attendance is so that it never ends done by the teachers and recorded in individual books, and helps all the children that need it. which are consulted when the stipend is paid. Bolsa Escola helped me a lot, now I am not like before, In addition to the individually paid grant, PETI also I study a lot, provides, on a monthly basis an equal amount of money if not for Bolsa Esola I would be worse than before. (US$ 13.50) per child in the program to the municipali- ty. These grants help to finance the costs of the after- My mom helps me and my dad too, school program including salaries, educational materials but the Bolsa Escola program helped me like nobody else. and meals. The municipality must, however, contribute 10 percent of the cost, typically by providing buildings, My friends, never again will I go to work, transportation, and computers. now I have Bolsa Escola and I have to study. I don't want to return to cutting sugarcane ever again. By emphasizing school attendance, the program aims to Our education team is good and very cool, alleviate poverty while simultaneously attacking its caus- this is true and nobody can fool me. es. Lack of education has long been blamed as the chief Thanks to God and our politicians who took me away from cause of poverty in Brazil, and raising educational levels cutting sugarcane. among the poor is considered the most efficient and I will end my presentation now, long-lasting method of breaking the vicious circle of so to all my colleagues a warm greeting, poverty and reducing inequality. and to all those responsible a strong handshake. 6 "The cash grant helps to, in the short run, alleviate the beyond all the politically correct buzz words. "The pro- vulnerability of the family by providing it with addition- gram not only assists the families financially," he told us, al income. It helps break down the inter-generation "it gives the childhood back to the children." poverty trap by improving the human capital of children in participating households. But because it is done in He should know. Childhood was a luxury his family small installments over the year, it also help participat- could not afford to give him, when he himself was sent ing families adjust better to seasonal variations in the out to work as a kid. "The program is not just about economy, through its effect of smoothing their income. giving stipends to poor families," Bergson says. "It is In the long run, this program can contribute to increas- about giving families self-esteem and raising children to ing their overall level of welfare," says Sedlacek. have open minds and to participate in society." In Conceição do Coité, the PETI program, now extend- ed to neighboring municipalities, has lifted the entire region, which remains highly dependent on income from government old age pensions. In fact, the elderly have in many instances been the only group receiving cash money in these poor communities. The PETI stipends have provided a substantial additional source of income that has sparked the emergence of small busi- nesses and services, and have given the poor people of "The program these communities access to credit for the first time in their life. When SPectrum visited Conceição do Coité, a group of mothers discussing the PETI program explained how they have been able to buy medicines, not to men- not only assists tion new clothes and toys for their kids -- something they had never been able to afford before. In addition, the families the PETI program has also brought clean water to the town, as it was a requirement for the after-school pro- gram. A dentist even visits the town regularly now. financially, Participation and transparency One of the most striking features of the program in Conceição do Coité is the participation of civil society which is involved at all levels of decision making. it gives Decisions on how money is spent and how positions of PETI are filled are made with input from local steering committees. Monitors of the after-school program are selected in cooperation with UNICEF. Selection is based childhood on educational background, not political criteria. Transparency is further enhanced by local representation at both the municipal and state levels. To help this capacity building process, UNICEF and the NGO back to the Movimento de Organização Comunitária (MOC) assist the government by offering training to the local and often uneducated citizens to make them aware of their rights and opportunities and how to be active citizens. children." Jeronimo Rodrigues, an MOC representative, says work- ing with PETI has been a pleasant surprise. "When we arrived we expected it to be just another government program," says Rodrigues. "But we have learned that this project is producing new social relations. The church and unions are working together, and both groups which used to see themselves as anti-government, are now working with the authorities. It is a learning process on both sides who see the next challenge as creating sustainability in the program." A young man named Bergson, who coordinates the after-school program in Conceição do Coité, maybe expressed most to the point what PETI is all about -- 7 Bolsa Escola: Bridging Two Worlds by Cristovam Buarque A t the opening of the April 2000 Forum on Education for All in Dakar, the General Secretary of the United Nations, Kofi Annan, drew attention to a Brazilian program called Bolsa Escola and suggested that this was a program worth replicating in other countries. Annan's speech was in English, but he used the Portuguese name for the program. After his Beside its educational impacts, the Bolsa Escola has been speech, many participants began asking the question, noted for its other positive impacts, including the stimu- "What is Bolsa Escola?" lation of economic growth, thanks to increasing spend- ing of the families in their local economies, improved What is Bolsa Escola? This successful program is based health and end of malnutrition. on a very simple premise that if children do not study regularly because they have to work, then they will stop The cost of Bolsa Escola is not high. The Brazilian and working and go to school if they or their families have Mexican projects pay an average of US$40 per family the necessary funds. The Bolsa Escola program was per month, but in a very poor country, this could fall to designed based on this simple notion and families who around US$20. There is no doubt that Bolsa Escola can fulfilled the following conditions were invited to partici- be effective in attacking the vicious cycle of intergenera- pate and received a stipend: tional poverty by providing children with an education and their families with an income. Their income levels were below the national poverty level; Cristovam Buarque is a professor at the University of All the children in the family of school age had to be Brasília, where he was vice-chancellor from 1985-89. He enrolled in school; and was also governor of Brasília during the period of 1995-99. The family had to ensure that all of these children He is now the president of an NGO called Child Mission, did not miss more than two days of class per month which has the objectives of promoting Bolsa Escola through- -- if even one of the children missed more than two out the world and finding private funding sources for days of classes, the family would not receive any Bolsa Escola. money that month under the Bolsa Escola program. The Bolsa Escola program has been implemented in many cities in Brazil over the past five years, and a simi- lar program has been in existence in Mexico for the past two years. UNESCO and UNICEF have made several positive evaluations of the program, which show that children from families benefiting from the program stay in school with almost no dropouts and display signifi- cant improvements in performance. Staff from the World Bank and Inter-American Development Bank who have studied this program have also conveyed favorable opinions of its effectiveness. Rather than having to work with her father, this girl has been given a chance to go to a school just outside Brazil's capital, Brasilia. 9 Keeping Children in School Indonesian Children Got Top Priority During the Financial Crisis: It Paid Off. I ndonesia's commitment to its children and their future after the financial crisis hit in 1997 has been an impressive undertaking. Having learned from similar Signs of Success experiences in the 1980s that the crisis posed the grave risk A trial survey indicated that the program has been over- of damaging the long-term development of the nation's whelmingly successful in reaching poor children. Some 82 human capital, the government reacted swiftly, giving top percent of all recipients came from very poor households. priority to keeping kids in school despite intense economic There has been little evidence of leakage or corruption in and political turmoil. the distribution of the scholarships and grants. In addi- tion, the survey found no discernable decline in girls' The Back-to-School Program was launched in July 1998, enrollment -- a good indicator of effectiveness -- that only a few months after the advent of the crisis. Two could be attributed to the crisis. objectives guided the project: keep poor children in school and keep the schools in poor areas operational throughout In 1999, the Back-to-School Program was given the the crisis. President's Award for Excellence by James Wolfensohn, President of the World Bank. Scholarships and grants formed the basis of the safety net. The scholarships and grant funds are transferred directly to the recipients through the post office. A media campaign was launched with the aid of UNICEF, the Australian Agency for International Development (AUSAID), and the Asia-Europe Meeting (ASEM) to inform students and par- ents about the program. The program gave high priority to transparency in order to combat fraud, creating an inde- pendent monitoring program and a massive training pro- gram for school principals and community leaders. In the first year, more than 2.6 million children in more than 82,000 schools and 314 districts received funds. The program expects to reach a total of 6,580,000 children and 132,000 schools by 2003, at a total estimated cost of $616 million. The program is financed by the Government of Indonesia, Asian Development Bank, and the World Bank. To meet the need for a rapid response to the crisis, the World Bank team took the innovative step of restructuring several existing secondary education project loans. The money from those projects, once earmarked for school construction, were diverted to the new educational scholarships and grants. 10 Indonesia Takes a Stand Against Child Labor Indonesia is taking a strong stand against harmful child labor. "To deprive children of their childhood and their right to receive basic education cannot be tolerated and has to be ended," said Indonesia's Minister of Manpower, H. Bomer Pasaribu, as he addressed the issue in his speech to the World Bank's Children's Week in April, 2000. Minister Pasaribu acknowledged his country's need to reform national labor laws. He did make clear, however, that Indonesia was among the first countries to have ratified the eight core conventions of the International Labour Organization (ILO) including Convention 182 concerning the eradication of the most harmful forms child labor. The other core conventions concern forced labor, freedom of association, protection of the right to organize, collec- tive bargaining, equal remuneration, abolition of forced labor, discrimination in employment and occupation, and minimum age. According to Minister Pasaribu, Indonesia ratified all the ILO core conventions with great ease given the political commitment of the Parliament and the President of Indonesia, and with the support of the technical assistance of the ILO and national social partners. He recognized that the challenge ahead for his country now lies in the imple- mentation of the conventions. "As a first step, we need to mobilize wide social participation of all government appa- ratus, business and employers' groups, workers and workers' organizations, as well as other non-governmental organ- izations for the effective implementation of those standards." He also stressed the need for capacity building, both within the government as well as in the private sector and civil society in order to begin effectively implementing these standards. Photo: Rober tRadifera " The international community has welcomed the Bank's operations on child labor, but this comes with a hefty obligation for us to live up to their expectations." Zafiris Tzannatos, Global Child Labor Program Leader Great Expectations Under the leadership of Zafiris Tzannatos, the World Bank is adding its expertise and financial capabili- ties to the fight against harmful child labor. Created in 1998, the Global Child Labor Program has brought the Bank's strong analytical expertise and The ILO has estimated the number of working children financing capabilities to the fight for child protection between the ages 5 and 14 in developing countries to be and against harmful child labor. By doing so, the World on the order of 250 million, 120 million of whom work Bank joined the efforts of many other multilateral and full time. These estimates suggest that Africa, the national organizations as part of its on-going work to world's poorest region, has the highest incidence of child alleviate poverty and to promote economic development. workers -- about 40 percent, while Asia and Latin America have about a 20 percent incidence. But Asia, by "We are the new kid on the block. UNICEF and the far the most populous region, has the highest absolute International Labour Organization (ILO) both have number of child workers. been working directly on child labor issues at the com- munity level and in the labor market for much longer World Bank statistics indicate that more than 1.3 billion than the Bank," says Zafiris Tzannatos, leader of the people currently live on less than $1 a day -- the inter- Bank's Global Child Labor Program. "What we can do, nationally defined poverty line. An additional two bil- together with our partners, is to place child labor in the lion are only marginally better off at $2 a day. UNICEF broader developmental agenda, to mainstream it, to add estimates that children account for at least 50 percent of further resources in the global fight for the reduction of the poor -- which means that 650 million children are child labor and the increase in education. The interna- living in extreme poverty, and their number is rising. tional community has welcomed the Bank's operations on child labor, but this comes with a hefty obligation Action is Needed Now for us to live up to their expectations." There are a number of ways that the Bank can assist and accelerate the reduction of child labor. "Reducing pover- The World Bank recognizes that child labor is one of ty through economic development and promoting the most devastating consequences of persistent poverty. improvements in access to and quality of basic educa- Long hours of work and hazardous employment harm tion are essential elements of effective strategies to children's development as well as their physical and reduce child labor and promote child protection,'' says mental health, and must be addressed with a multi- Tzannatos. "But such actions take a long time to have a faceted and comprehensive approach. significant impact. Additional faster-acting measures are needed. In countries where the objective of universal Statistics May Hide Reality primary education will take many years to achieve, it is "It is symptomatic of the complex nature of child labor necessary to refocus our operations and redesign our and the sensitivity of the subject, that good statistics are activities to address harmful child labor concerns." not available and as such, it is very difficult to measure With the development of the Global Child Labor the scale of the problem," Tzannatos explains, compar- Program, the Bank now gives more focus to child labor ing child labor with female employment, an area that he issues in its dialogues at country level, working with has extensively researched for more than two decades. governments and other multilateral agencies and civil "Statistics in most countries show that only a fraction of society to explore and understand the economic and women work, as if the rest are doing nothing. But this social implications of child labor." is because female work, like that of children, has yet to be defined properly and measured accurately. Both are cases where the invisible often dominates the visible." 13 These dialogues aim to raise awareness among govern- the international community -- should try to go ment officials and politicians as well as other key actors. beyond the capabilities of any single program. The This is important because the effectiveness of interven- Bank has already started a program of international col- tions will ultimately depend upon the existence of a laboration with ILO and UNICEF which will create social alliance against harmful child labor. At the same opportunities for information gathering, knowledge time, the Global Child Labor Program aims to raise sharing and coordinated activities. But more can be awareness and sensitivity of Bank staff through seminars done. Something all of us need to consider is the cre- and workshops. In the past year, about 1,000 Bank staff ation of a Global Child Labor Reduction Fund -- a facility have attended these seminars and workshops. which will pool resources at the international level and put them effectively in practice at a local level. There is A Global Child Labor Reduction Fund already such a facility for the environment, but why not "The Global Child Labor Program will be judged by its for the most important ingredient of the environment, impact. Still it can have only a limited impact ­ no the children of today, the people of tomorrow?" institution acting alone can solve the problem, given the massive resources required," Tzannatos says. "So we -- The World Bank and Children The World Bank is committed to pro-actively and com- prehensively improving the quality of life for children. New World Bank initiatives are targeting child labor, street children, and youth-at-risk. These projects build upon the contributions of other organizations that have been in the forefront of global activities to tackle this problem. In the past five years, World Bank lending for social proction, education, and, health initiatives has aver- aged $4.7 billion annually. The World Bank is the single largest external source of finance for education in the developing world. The Sad Facts More than 650 million children live in poverty. Malnutrition contributes to over 6 million child deaths annually. In the past decade, more than 2 million children have been killed, and 6 million injured as a result of armed conflict. 130 million children do not have access to basic education, and nearly 250 million children are working worldwide. 14 Child Protection in the Regions Middle East and North Africa (MENA) Though not as widespread or harmful as in other regions, child labor exists in the region and poverty among children is high. The available estimates indicate that working children may constitute as many as 10-15 percent of the total labor force. Most of child workers come from families in the lowest income groups and many contribute significant amounts to family incomes (sometimes as much as 50 percent). Even though the MENA region has the lowest par- ticipation of children in the labor force compared to other developing regions and often hard to capture in conven- tional statistics, the participation remains high in Yemen, Morocco and Egypt. Currently, the percentage of population under the age of 15 in the region is between 40-45% of the total popula- tion, which may contribute to an increase in the number of street and working children. Additionally, urbanization has reached a very high level in the region. In Jordan, 80% of the population lives in urban areas (instead of 20% a generation ago) and similar trends are observed for Yemen, Egypt and Morocco. This has given rise to urban slums. Most urban slums dwellers were originally rural people who immigrated to the cities to escape rural poverty. With deteriorating conditions, these urban slums have become big producers of working street children. South Asia (SAR) South Asia remains home to the largest number of working children in the world. All the South Asian countries have enacted legislation that addresses some aspects of child labor, such as bonded labor or the employment of children in hazardous industries, and have implemented some innovative projects in pockets of child labor such as the ready- made garment industry in Bangladesh, and the carpet belt in India. However, child labor continues to be a perva- sive problem. While statistics on the number of economically-active children vary, a conservative estimate is that some 20-30 mil- lion work in the five large South Asian countries. Children's workforce participation rates, which are the ratio of the number of child workers to the child population, range from just above 1 percent in Sri Lanka to more than 27 per- cent in Nepal. The rates vary by states/provinces within countries and tend to be higher among boys and in rural areas. The higher workforce participation rates among boys is due to the fact that girls work in informal sectors, such as within the home or as housemaids, which are harder to capture through statistics. The long-term solution to child labor problems lies in reducing poverty, improving the quality of education, and expanding access to schooling to disadvantaged social groups. These are central objectives of the Bank's assistance programs in the South Asian countries. Increasingly, Bank-assisted education projects in South Asia, such as the India District Primary Education Projects and the Nepal Basic Primary Education Project II, include interventions for working children. In addition, a growing number of projects are taking account of child labor issues including India's District Poverty Alleviation Project in Andhra Pradesh, the Bangladesh Export Diversification Project, the Pakistan Poverty Alleviation Fund, and the Bangladesh Micro Credit II Project. Under India's Uttar Pradesh Diversified Agricultural Support Project proactive measures were taken to prevent child labor in the silk industry. From the World Bank South Asia Regional Brief, "Addressing Child Labor in South Asia" 15 The Global Child Labor Program The World Bank recognizes that child labor is one of the most devastating consequences of persistent poverty and has taken a clear position to help reduce harmful child labor through its ongoing poverty reduction efforts and through new initiatives. Because long hours and hazardous work can have a negative impact on a child's develop- ment and their physical and mental health, the World Bank is working to help design projects or project components to help reduce the harmful effects of their employment. In January 1997, a paper titled "Child Labor: Issues and Directions for the World Bank" (Fallon and Tzannatos) laid out various instruments that the Bank can use in its lending and non-lending activities to mitigate the harmful effects of child labor. The paper recognized that while "...children should not have to work, but an estimated 250 million children are work- ing worldwide. Child labor is a complex subject. While often harmful, it is not always so, especially where the alter- native is deeper poverty for children and their families. Missteps in trying to stamp it out can make matters worse, for example, if legislation is unevenly enforced, it can result in pushing children into worse situations. Solutions are needed to reach beyond the conventional thinking or example, although primary education is key, it is also critical to adapt schools (for example, their times and schedules) to accommodate children who otherwise attend and increase real access (such as by reducing the costs to families of having their children go to school). Vital to achieving progress against harmful child labor are (i) effective efforts to reduce poverty generally and (ii) the economic and social policies, programs, and results that are the underpinning for success in poverty reduction. But these broad measures, while important, take time and are not sufficient by themselves. Additional actions focused specifically on child labor per se are also needed." These new initiatives include the establishment of the Global Child Labor Program (the "Program") in May 1998. The Program is housed in the Human Development Network's Social Protection Unit and is the focal point for Bank- wide child labor activities, projects and policy. One of the main objectives for the creation of this Program was to enhance the effectiveness and increase the impact of the World Bank's work on children's issues in its ongoing pover- ty reduction efforts. The Program supports various child labor and child labor-related projects, including research and analyses, pilot studies, child labor reduction evaluations, and internal and external dissemination through training, seminars and via the child labor web-site. Policy implications derived from these projects feed into Bank dialogue with clients and donors, Bank country assistance strategies and lending activities and have helped to create the foundation for con- tinued partnership with multilateral and bilateral partners. The Program works in close collaboration with represen- tatives from all Regions and Units of the Bank and draws upon the international experience of labor experts from academia, NGOs, and other multilateral and bilateral organizations, such as UNICEF and ILO, particularly via the International Advisory Panel. The International Advisory Panel was established to (i) promote the input and feed- back of institutional partners, and civil society on the development of the World Bank Child Labor Program; (ii) to identify areas for research/analysis, (iii) define priorities for operations and policy, and dissemination; (iv) to help develop joint projects/partnerships/planning via increased information flows; and (v) help to avoid duplication and redundancy of child labor/related projects between the international organizations. Since its inception, the Program has been instrumental in coordinating and facilitating new work between interna- tional agencies, donors and Bank Regions, as well as providing resources for Bank initiatives. Nearly all Program supported activities are undertaken in collaboration with NGOs, donor and international organizations, including UNICEF, ILO, UNDP, and the Brazilian and Indonesian governments. Policy implications derived from these projects feed into Bank dialogue with clients and donors, Bank country assis- tance strategies and lending activities and have helped to create the foundation for continued partnership with multilateral and bilateral partners. The Program works in close collaboration with representatives from all Regions and Units of the Bank and draws upon the international experience of labor experts from academia, NGOs, and other multilateral and bilateral organizations, such as UNICEF and ILO, particularly via the International Advisory Panel. 16 Project Example: Inter-agency Research Cooperation Program This Interagency Research Cooperation Program is based on a series of activities based on the already ongoing com- mitments to -- and interests in -- child labour issues of the ILO, UNICEF and the World Bank. These activities will be conducted within a framework of technical collaboration among the three agencies in order to ensure the optimal use of resources and to create synergies. The project is based upon the potential for practi- cal collaboration at the technical level to address issues of common concern through joint efforts, with the guiding principle to link already ongoing activities and to ensure the dissemination of information and experience between the agencies. It is hoped that this process will stimulate further activities to improve the understanding of econom- ic exploitation of children and ways to eradicate such exploitation. The Program will continue to be a critical catalyst for a series of Bank activities to better define and to document the relationship between child labor and sustainable economic development; as well as initiating projects to identify and to examine cost effective education early interventions and the societal costs of child labor, and related disabilities. A basic tool which is currently being developed by the Program is the Child Labor and Child Protection Primer. While the forthcoming Child Labor Primer will be an on-going activity, this first draft will represent the compilation of exist- ing material, including material from the Global Child Labor Program training seminars and commissioned research. The principal objective of the Program and Primer is to provide high quality services to Bank clients. This will be done by guiding Bank staff on the feasibility and cost-effectiveness of alternative approaches to reducing harmful child labor by: Improving the understanding of the causes underlying child labor. Strengthening the knowledge base on child labor and providing comprehensive material to staff, clients and others involved in lending and non-lending work on child labor issues. Initiating staff dialogue and a sharing of experience on child labor issues with governments and international and national organizations. 17 "I am confident that the Bank with its expertise in development and its financial resources and strong standing with governments is beginning to have a powerful impact on the fight against child labor." Eduardo Doryan, Vice President, World Bank Human Development Network 18 Children's Week 2000: The Search for Solutions W hen it comes to solutions to the global problem of child labor, glimpses of hope are beginning to surface. Good experiences in Brazil and other countries show that it is possible to break the vicious circle of poverty that so often lies at the root of making children engage in work instead of going to school. By granting scholarships to poor fami- lies on the condition that the children must not work, Brazil is now well on its way to break its historic legacy of harmful child labor. On the other hand, new studies show the solutions that may look obvious to many, namely prohibition of child labor, or compulsory school attendance, might well end up having the exact opposite effect than intended. The closing of a factory can for example lead to pushing the child workers into prostitution or crime-related activi- ties, devastating their lives further. In addition, simple prohibition of child labor and compulsory school atten- dance are measures that are often difficult to enforce. These were some of the important messages that came out of the international conference "Child Protection and Child Labor: The Search for Solutions" held on Human Development Network Vice President Eduardo Doryan. April 12-13, 2000, in Washington, DC, as part of Children's Week 2000 -- the World Bank's first confer- The conference was opened by Eduardo Doryan, Vice- ence devoted to children's issues. President of the World Bank's Human Development Network. He called child labor a "burning stone in the Among the participants were top officials such as hands of the international community." He acknowl- Indonesian Minister of Manpower H. Bomer Pasaribu, edged that the Bank is a newcomer to the field of child Brazilian Secretary of State Wanda Engel Aduan and labor, and noted the achievement the conference repre- Professor Cristovam Buarque, former governor of sented adding that this is only "the child's first steps". Brasilia, and U.S. Senator Tom Harkin (D-Iowa). The participants, who included representatives from civil "Two years ago the Bank did not explicitly address the society, NGOs, other multilateral agencies and policy issue of child labor. But now we have not only a frame- makers, engaged in a rich and constructive dialogue on work to work with (`Child Labor ­ Issues and how to provide the estimated 250 million working chil- Directions for the World Bank'), we also have a Global dren with the right to be healthy and the right to be able Child Labor Program. I am confident that the Bank to learn to read and write, to be able to play and feel safe with its expertise in development and its financial and happy in their family and in their community. resources and strong standing with governments is beginning to have a powerful impact on the fight against child labor," Doryan added. Doryan also recog- nized the importance of the support the World Bank has received from donors. Norway has been the biggest World Bank donor, with generous contributions also given from Italy, Japan, Denmark, and Sweden. 19 The Conference presented an ambitious schedule of two Notable sessions highlighted children in especially diffi- days filled with sessions ranging from the academic cult circumstances, innovative NGO initiatives, and the underpinnings of the definition of child labor to ses- role of the private sector on these issues. These sessions sions on child soldiers and child prostitution. Panelists were an opportunity for the international community to also included Michael Dottridge, Director of Anti- examine some of the worst forms of child exploitation Slavery International, Alec Fyfe, Senior Adviser on and presented new facets of these issues for the interna- Child Labor for UNICEF, Ruchira Gupta, producer of tional development community to unite against. the Emmy Award winning documentary, `The Selling of Innocents', and Frans Roselaers, Director of ILO's At the end of the two days, it was clearer than ever that International Programme for the Elimination of Child there was no one solution -- that the Search of Solutions Labour (IPEC). had in fact just begun. The Conference and the fruitful discussion contributed to laying groundwork for further collaboration to tackle these pertinent issues. International Labour Organization Convention No. 182 concerning the Prohibition and Immediate Action for the Elimination of the Worst Forms of Child Labour ILO Convention No. 182 was unanimously adopted by the International Labour Conference in June 1999. This Convention achieved 27 ratifications by June 2000 on the first anniversary of its adoption, making it the fastest- ratified convention in the ILO's 81-year history. As of January 2001, Convention 182 has been ratified by 60 mem- ber countries. By the end of 2001, the ILO's International Programme on the Elimination of Child Labour's (IPEC) objective is to obtain 87 ratifications, or half the Member States. By ratifying this new Convention, member countries agree to take immediate and effective measures to abolish the worst forms of child labour as rapidly as possible. These follow-up measures include the development of national laws, policies, and programs to prohibit and eliminate the worst forms of child labour. For more information on this Convention and the ILO's International Programme on the Elimination of Child Labour, we invite you to visit their website at www.ilo.org/public/english/standards/ipec The Rugmark Foundation Nina Smith, Washington D.C. Director of the Rugmark Foundation, presented the work of this innovative group at Children's Week 2000. Rugmark is working to eradicate child labor in the carpet industry and support education programs for former child workers. It is a voluntary program which combines education opportunities and private sector involvement to achieves its goals. The Rugmark Foundation has offices in Germany, India, Nepal, Canada and the US. The principle of its operations are fairly simple: Rugmark recruits local carpet manufacturers and importers, and works with them to ensure that the products they sell and/or make are free of child labor. They also encourage manufacturers to employ only adults. Participating manufacturers that adhere to these strict guidelines, and pass Rugmark's random inspections of car- pet factories, are given the right to place the Rugmark-label on their carpets. The Rugmark-label guarantees that the carpet was not made by children and that a contribution of the profits will be made to educate former child car- pet weavers. In India, Nepal and Pakistan, Rugmark has succeeded in removing more than 1,600 children from car- pet factories and sending more than 1,200 children to rehabilitation and educational programs. Child Trafficking and Child Soldiers In his presentation on child trafficking in West and Central Africa, Michael Dottridge, Director of Anti-Slavery International, stressed the need to identify what actions should be taken in the "best interests" of the children. "Some NGOs in West Africa assume that children want to be repatriated and put through some form of rehabilita- tion. Others suggest that children may be better off where they are, but need to be given substantial support, partucularly to attend school," Dottridge said. He also addressed the fact that African countries need to make an agreement that makes it illegal to take children across borders to work. World Bank social scientist and former Ugandan Minister of Education, Betty Oyella Bigombe, moved the audience with her presentation on child soldiers. There are nearly 300,000 child soldiers actively participating in armed con- flicts around the world. During the last decade it is estimated that child victims of war have included 2 million killed, 12 million left homeless, more than 2 million orphaned or separated from their parents, and 10 million seriously psy- chologically traumatized. Bigombe emphasized the need for development of strategic partnerships among the key players to address this crisis and recommended that issues concerning child soldiers become mainstreamed into major development programs. A New Role for Media A good example on how media can create opportunities in developing and transition countries is BBC World Service Trust, which was presented by Director Corinna Furse. Local projects in 50 countries have used BBC World Service airwaves to help build media capacity and to carry out child labor projects, among others. UNICEF has called it a model for media partners everywhere. "So far 230 programs have been produced in a total of 22 languages. They have been featured in more than 60 countries and linked to a Children's Right Website and UNICEF on-the-ground activity," said Furse. 21 Harkin. omT Senator US of Office the of tesy Cour Photo: "Any global trading system that fails to protect the world's children from abusive, coercive forms of labor is both inadequate and unsustainable." Senator Tom Harkin, (D-IA) 22 The Last Vestige of Slavery U.S. Senator Tom Harkin, the driving force behind the new U.S. trade policy incorporating protection of children, has put child labor at the top of the U.S. agenda. T om Harkin, a third term Democratic Senator Harkin also asked the international community to make from Iowa, did not mince words during his a concerted global effort to reduce child labor by at least keynote speech last April to the World Bank's 50 percent over the next decade. conference on child labor and child protection. "We have begun to see real progress in countries where "Child labor," Harkin declared, "is the last vestige of resources have been invested by ILO, the World Bank slavery on earth." and others," Harkin said. "The Bank's child labor efforts in Brazil, Romania, India and Indonesia are good exam- Over his long political career, Senator Harkin has earned ples. I applaud such initiatives and urge you to make a reputation for giving voice to disadvantaged and vulner- them a major focus of your projects in these countries able groups. Harkin, together with Senators Jesse Helms, and elsewhere. It is time to step up our efforts to bring a Republican, and Paul Wellstone, a Democrat, succeeded education -- not work -- to millions of children in getting an historic plan to combat child labor around around the world." the world included in the final House-Senate conference report on the Africa Trade Bill. The measure later passed Harkin stressed that globalization should be about pros- both the Senate and the House in 2000. perity that is broadly shared, opportunities that are widely available and commitments to human rights that The Harkin amendment requires beneficiaries of U.S. are fully honored. "ILO Convention 182 is an expres- trade preferences, which entitles nations to lower tariffs, sion of global intolerance for abusive child labor," he to meet and enforce the standards established by stated. "It places priority on education, and we must International Labour Organization (ILO) Convention honor -- and strive to ensure that others honor -- that 182 for the Elimination of the Worst Forms of Child priority." Labour (see page 20). "Education," he continued, "is a two-way street. Every "Any global trading system that fails to protect the world's product made with abusive child labor represents tacit children from abusive, coercive forms of labor is both acceptance of this abusive practice by nations that inadequate and unsustainable," says Harkin, who has also import these goods. We need to do more to educate our worked with former U.S. President Bill Clinton to issue consumers, customs officials and government represen- an executive order banning the federal government from tatives on the evils of child labor." procuring items made by forced or indentured child labor. A World Free of Child Labor Harkin concluded by noting how he had been struck by A Global Solution the World Bank's mission statement, "Our dream is a Urging the global community to seek a global solution world free of poverty." to the problem of child labor, Harkin in his speech called for more investment in educational infrastructure "Well, my dream," Harkin said, "is the elimination of in developing countries . "The World Bank and other abusive child labor," reminding his audience that each lenders must develop additional programs and incentives child who is removed from the factory floor and to enable the governments in these countries to do so," returned to the classroom is one more child given a he said. "Donor governments can help by reducing or chance to fulfill his or her human potential. eliminating crushing foreign debt owed by many devel- oping nations, and conditioning such debt forgiveness on concrete steps to end abusive child labor." 23 Interagency Research Cooperation Program: A United Front Against Child Labor 555 years ago, Agatha Smeralda was taken in as the first The UCW Project, to be implemented over a two-year baby in the Spedale degli Innocenti or Foundling period, will be managed by the project co-ordinator and Hospital in Florence. This year, one of the world's oldest will be based in the Innocenti Research Centre, in institutions for abandoned children, welcomes another Florence, Italy. The hospital, one of Italy's architectural "infant", the new interagency cooperation between the masterpieces with a world-renowned collection of art, is International Labour Organization (ILO), UNICEF, situated in the center of Florence, just a few minutes and the World Bank, which is to become the center of walk away from the city's famous cathedral. This is where the three organizations new alliance against child labor. the new UCW Project will have its home, based in the offices of UNICEF's International Child Development The ILO, UNICEF and World Bank created a historic Center (ICDC) in one of the hospital wings. Professor cooperation in the campaign against child labor early Furio Camillo Rosati from the University of Rome "Tor last summer with the establishment of the new Inter- Vergata", has been selected to be the coordinator of the Agency Research Co-operation Project: Developing New UCW Project and will be responsible for the start-up phase. Strategies for Understanding Children's Work and Its Impact (the "UCW"). The UCW project stems from The objectives of UCW Project are to: the recommendations outlined in the Oslo Agenda for Improve child labor research, data collection and Action from the Oslo International Conference on data analysis; Child Labour, 28-30 October 1997. During this 1997 Enhance capacity of child labor data collection and Conference, which convened representatives of national research, especially at the local and national level; governments, civil society, employers' and workers' and to organisations, and multilateral organisations, the unani- Improve impact assessments of interventions against mously adopted `Agenda for Action' described the possi- child labor. ble roles and responsibilities of the stakeholders at national, regional and international levels. An effective The UCW Project will also aim to minimise the dupli- implementation of the Agenda for Action required com- cation of efforts amongst the agencies by consolidating prehensive and reliable data, particularly given the the available information on data and activities, and increasing need and willingness to develop child labor thereby enhancing knowledge sharing. It will also identi- intervention policies and programs. fy major information gaps and suggest means for filling them. Over the two year period of this Project, several databases containing pertinent and timely information on child labor will be developed and disseminated via a joint web site, and several regional workshops. The establishment of a network directory will also provide a more formal and sustainable vehicle of sharing new knowledge and experiences amongst local and interna- tional experts. The website will serve as the visual focal point for the interagency cooperation program and will initially pro- vide an overview of existing child labor data including surveys and other information useful to the analysis of child labor and children's activities in general. Such an "Madonna of the Innocents" by an overview will serve as a capacity building exercise and unknown Florentine follower of enable users to access information provided by the three Francesco Granacci. This painting is organizations and others from one single source. part of the Spedale degli Innocenti art collection in Florence, Italy. The Spedale degli Innocenti or Foundling Hospital will house the new Interagency Research Cooperation Program's UCW 25 Project. "With the help of the three agencies, several countries have already undertaken nationwide child labor surveys "Each of the three agencies brings their strong compara- and other relevant studies. Much of it is, however, not tive advantage to the table in the UCW Project. easily available and might be underused," says Zafiris UNICEF and the World Bank are effective on the sup- Tzannatos, Leader of the Global Child Labor Program ply side issues of poverty reduction and improving at the World Bank. "Our hope is that the web-site will access to quality education. ILO has a particular capaci- make more of the existing micro-data available for the ty on the demand side in terms of its labor standards international research community," he adds. and their enforcement. Together the three agencies will be able to develop balanced responses to both the supply Other activities expected from the interagency collabora- and the demand side," Fyfe continues. tion includes further analysis of existing data, labor and household surveys with focus on child labor, and studies Frans Roselaers, Director of IPEC -- the ILO's of the impact of work on children's health, development International Programme on the Elimination of Child and education. The UCW Project will also produce new Labour -- is also excited about the new teamwork. "For studies and make the three agencies avoid the overlaps a long time this global plague of child labor has been in data collection that are taking place today. hidden because in many cases it was not easy to find, and -- sadly -- because many of us did not want to UNICEF Child Labor Specialist Alec Fyfe welcomes the look at it. The new UCW Project and its web-site will new interagency cooperation. "The Oslo conference make the facts visible and useful and become a powerful stimulated the three agencies and it provided us with a tool in the hands our many social partners," he says. long needed opportunity to link up," he says. Photo: Lotte Lund From left to right: Mehr Khan, Innocenti Research Centre (IRC); Kebe Ashagrie, International Labour Organization (ILO); Alice Ouedragoo, ILO; Frank Hagemann, ILO; Zafiris Tzannatos, World Bank; Bernadette Abegglen, IRC; Alec Fyfe, UNICEF; and Santosh Mehrotra, IRC, at an initial interagency meeting in Florence. 26 Child Labor's Impact on Health: A Growing Concern I wake up each day at six in the morning. I drink tea and go to by Philip L. Graitcer, DMD, MPH work. I return about six in the evening. I eat dinner and sit with the family for a while and then go to bed. Although direct measures of the economic aspects of --Hamdi, a 15-year old tobacco children's occupational injury are unavailable, estimates worker, Egypt, 1999 can be made using human capital or willingness to pay calculations. Figures from India suggest that, depending on the estimate method used, the annual cost of child labor-related mortality in India lies between 101 million Child labor remains one of the most evocative chal- and 2.43 billion dollars US. lenges facing the world at the end of the 20th century. At least 120 million children in developing countries To more fully understand the health, educational, and work full-time. When part-time work is included, this social implications of child labor, Graitcer and Lerer figure rises to 250 million. examined the lives of working children in greater Cairo. Using both quantitative and qualitative methods, they A working child gives up his childhood and future compared the lives and health of groups of working and prospects so that his family can have food to eat and nonworking children ages 10-14 years. Unexpectedly, younger brothers and sisters can go to school. Working they learned that there are not great differences in the children are faced with harsh reality and limited options short-term physical health status of working children in their choices for the future. For the working child, compared to schoolchildren. Disease and injury mor- altruism and self-sacrifice are not theoretical concepts. bidity and the comparative nutritional status of working These children pack a great deal of life experience into a and schoolchildren are virtually identical. short period of time. When examined in a broader context that includes men- Throughout the world, occupational injury and mortality tal, physical and social well-being, a working child, how- rates for working children exceed those of adults. Yet, data ever, is faced with more limited life options than a on the extent of child labor and the associated burden of school child. Grinding familial poverty mandates that a injury and disability are often of poor quality. In two child work for family survival. Working children are recent studies supported by the World Bank, Drs. Philip poorly equipped with educational skills and as adults Graitcer and Leonard Lerer, from Emory University will be unable compete economically in a modern and (Atlanta) and INSEAD (France), collected and analyzed increasingly technological society. Even their meager data from existing sources and from working children to work skills are of little value in the modern marketplace. refine data on the impact of child labor on health. Using data derived from the Global Burden of Diseases Study (GBDS) Graitcer and Lerer estimated child occu- pational mortality rates by GBDS region and found them to be comparable with adult mortality rates. They estimate that there are 6 million work-related injuries in children resulting in 2.5 million disabilities and 32,000 fatalities each year. Based on these data, they concluded that children work under equally or more dangerous conditions than adults. 27 The impact of their present work on their long-term health may be a ticking time bomb. Although presently healthy, youthful exposure to toxic substances may result The World Bank's Early Child Development (ECD) Thematic in chronic health conditions or cancers later in life. Group works closely with "Friends of ECD" which includes Bank staff, specialists from partner agencies such as UNICEF, While seemingly not harmed physically from his labor, The Consultative Group on Early Childhood Care and the working child is deprived of his childhood, has few Development, UNESCO, Inter-American Development Bank opportunities for learning or obtaining skills, and has (IDB), Organization of American States (OAS), Pan-American little to offer an evolving modern society. Our recom- Health Organization (PAHO), USAID, Aga Khan Foundation, mendations focus not only on health issues impacting Bernard van Leer Foundation, Save the Children, Christian working children, but also on the requisite improve- Children's Fund, World Vision, and others. ments in educational and social services required to dis- courage the demand for child labor and to hasten devel- opment in a rapidly modernizing society. The Team develops tools to help with the design, imple- mentation, monitoring, and evaluation of ECD programs. It develops and disseminates information about the con- Among his many qualifications which include Director of ditions in which young children currently live, and the World Health Organization's (WHO) Helmet Initiative techniques known to foster their healthy development. and member of the World Health Organization Expert It helps to coordinate ECD efforts across sectors and Advisory Board for Injury Prevention, Dr. Graitcer is also among agencies. It promotes investment in young chil- an Associate Professor in the Center for Injury Control at dren by educating Bank staff, clients, partner agencies, the Rollins School of Public Health at Emory University. and other interested parties about the human and eco- Here, he is responsible for the development of the teaching nomic gains that derive from ECD. program in injury prevention and conducts research in the prevention of household and head injuries. Visit the ECD web site: From the World Bank's Internal Website: Click on "Sectors" Click on "Education" Click on "Early Child Development" From the World Bank's External Website: Go to www.worldbank.org/children Photo: Eliane Custódio A boy in a child labor eradica- tion program in Brazil receiv- ing dental care. Kielland Anne 28 Photo: A Donor's Vision on Child Labor by Anne Kristin Sydnes, Minister of International Development, Norway C hild labor is both a cause and a consequence of poverty. Combating child labor should there- fore be an integral part of our struggle to eradi- cate poverty and promote development. It pleases me that this edition of SPectrum is devoted to the issues of child labor and child protection. In order to address the exploitation of children one needs to start with awareness raising, followed by a deeper understanding of the problem, commitment to change -- and action. Until child labor is eliminated, schooling should also be available for those children who have to work. This calls The Convention on the Rights of the Child remains the for flexible, non-formal education at different hours. It most widely and most rapidly ratified human rights con- is important, however, that non-formal education be vention ever. This testifies to a global consensus that made compatible with the formal system -- so that fur- children have rights of their own. Children have the ther education is possible for those who will be able to right to be protected against exploitation -- to be pro- continue studying. tected against vandalization of their childhood. It is everyone's responsibility to ensure that those rights are The International Conference on Child Labour in Oslo realized. Information sharing and advocacy are impor- in October 1997 adopted an ambitious Agenda for tant tools to this end. Action. The Agenda recognizes the complexity of the child labor problem. It offers no simple solutions, no Children are the most vulnerable victims of poverty. quick fixes. The causes of poverty vary from one country Child labor often leads to a vicious circle. Poor families to another, and from one culture to another. So do the are often dependent on income from their children in remedies. order to survive. Yet the type of labor performed by children and the experience they gain seldom lead to Although some progress has been made in terms of secure work with decent wages. Rather, child labor implementing the Oslo Agenda, we are far from reach- negatively affects the child's physical, mental and social ing the goal of eliminating child labor. The recent ILO growth. Hence, poverty alleviation is a key to eliminat- Convention on Eliminating the Worst forms of Child ing child labor. Labour is an important tool in the struggle ahead. In order for families to break out of the poverty cycle, My Government strongly supports the Global Child children's education is essential. Conditions must be in Labor Program in the World Bank. I am pleased to place for parents to send their children to school -- observe the growing momentum of this initiative, sup- not to work. Schools must be accessible and safe. porting various child labor projects in partner countries. Attendance must not be a financial burden on those The World Bank's Children's Week 2000 Conference who cannot afford it. The school system must offer clearly demonstrated that child labor and child protection quality education that both parents and pupils see as are now firmly on the agenda of the bank. Rightly so. relevant to their future. Children represent our future. Their rights are at the heart of the struggle for human dignity. Protecting chil- dren is the best of investments. 30 Oslo Conference on Child Labour Agenda for Action Special reference is made to the Oslo Agenda for Action in recognition of its direct impact on the World Bank's activ- ities to support child labor reduction and protection initiatives. The Agenda for Action called for the "support and participa[tion] in the work done by multilateral organizations and international financial institutions to eliminate child labour,... and promote better coordination between these organizations and institutions." (4.12) "The Oslo Conference on Child Labour reflected the growing concern about child labour. The participants at the Oslo Conference recognized the following as the goals and priorities needed to effectively reduce child labour: The main goal is the effective elimination of child labour. Priority should be given to the immediate removal of children from the most intolerable (extreme) forms of child labour and to the physical and psychological rehabilitation of children involved. Countries should progressively move towards elimination of all child labour for children of school age (age depending on legislation in each country), to include any activity that interferes with children's development and their education. The participants at the Oslo Conference agreed on the urgency to address the issues of child labour,... and in particular to give priority to... actions at the national and international levels."1 1. Oslo Conference on Child Labour, 1997. Agenda for Action, 2.1-2.5. Photo: Eliane Custódio 31 In the shadow, a child domestic servant sneaked herself into this snapshot of a Beninese family showing off their newborn baby to a visiting friend. In Benin, one in four girls aged 6-14 years live like her, away from their family, unno- ticed and unloved. The Invisible Girl The international community has begun addressing child trafficking and the millions of young African girls that are kept in slavelike conditions The photograph shows a smiling Beninese family proud- Children Sold as Commodities ly showing off their newborn baby to a visiting friend. In the past few years, the international community has But it also reveals much more, capturing in a corner the begun paying attention. Analysts visiting the region face of a seven-year-old African girl, the family's domes- began observing what was going on around them with a tic servant, who sneaked herself into the snapshot. critical eye, identifying what is abusive, what the causes Nobody noticed her at the time, but her tiny act of defi- are, and what should be done about it. By the second ant longing spoke with powerful eloquence to the plight half of the 1990s, these observations led to the recogni- of five million little girls just like herself. tion that there exists a regional market for child labor, in which children are bought and sold like commodities. These girls are working as domestic child labor in households far away from their families. Like the girl in Because migration is so deeply ingrained in West the photograph, they are living in the shadows, unno- African culture, and migrants have so often in the past ticed and unloved. Often as young as six, they work for been accompanied by children, child trafficking is hard- very low pay if anything at all, enduring long hours and ly an emerging issue. Moreover, many West African soci- harsh treatment, often including physical punishment. eties have a long tradition of sending children to live with a relative, where they are expected both to work Today, the number of working children in Africa is still and to get an education. But new patterns have devel- lower in absolute terms than in other areas such as oped since the 1970's: patterns of exploitation that are Southeast Asia, where child household labor is also a built on custom, but wholly commercial in motive. serious problem. But research suggests that a much larg- er percentage of children work here than anywhere else Michael Dottridge, Director of Anti-Slavery in the world. International, notes the readiness of inter-governmental organizations to launch projects concerning trafficked According to the International Labour Organization children in West Africa, but is disappointed by how (ILO), 41 percent of Central and West African children poorly these same organizations have coordinated with below age 14 are working. That is nearly twice the rate each other and with NGOs. in Asia. Domestic service is the only extensive market for child labor in Africa (although other serious child "On occasion, we have noted what appears to be faintly labor problems do exist, such as the high number of absurd competition between agencies," Dottridge says. street children). The AIDS epidemic has had a devastat- "It is marvelous that everyone is interested, but it would ing effect on the child labor situation in Africa, leaving probably be a better use of resources to appoint a single many orphans fending for themselves after the death of agency to coordinate the various projects concerning Kielland their parents. child trafficking." In Benin, one in of four girls between the ages of 6 and To start tackling the problem, Dottridge first suggests Photo:Anne 14 live away from their parents. Of these girls, only 12 the need for clear agreement at a sub-regional, or even a percent attend school. More than 26 percent of Benin's pan-African level on the circumstances under which tak- households are housing a child under age 15 whose par- ing children across a border to work should be illegal. ents are not living in the household. 33 "Virtually every country needs to establish public stan- The World Bank is trying to address the problem dards in relation to child labor, notably the employment through lending to awareness programs, education, of child domestics from other countries,'' says Dottridge. poverty reduction, research, health, family planning, and These should determine, Dottridge contends, "when it infrastructure. Until the larger problems of poverty and is legitimate to put children to work and what rights AIDS are alleviated, millions of little girls like the one in must be accorded to young workers, such as a require- Benin who stuck her head in the photograph will be ment that all families with a young domestic put the working as little more than slaves in strangers' homes. child through full-time education." He also wants stronger legal frameworks. "There is either a complete lack of law concerning cross-border trafficking of chil- dren, or what law does exist is not clear enough for the border police to enforce -- if they could be persuaded to do so," he says. He argues that resources should be allocated to the communities of origin to prevent migra- "What is clear tion by setting up economic alternatives for the children and their families. There is already considerable experience in assisting chil- dren living and working away from home, notably to at the moment, child domestics in Haiti and the Philippines. "What is clear at the moment," says Dottridge, "is that it is time to learn from all the experiences which different agencies have had and to apply the lessons to help the children." is that it is Some in West Africa assume that it must be in the chil- time to learn dren's best interest to repatriate them and put them through some form of rehabilitation such as a children's home. Others suggest that children may be better off left where they are, but given substantial support, partic- from all the ularly to attend school. This was the suggestion made earlier this year by an NGO in Gabon, which observed that as fast as children from Benin and Togo were repa- experiences triated, new youngsters were sent to take their place. Be Realistic Maurizia Tovo, who works on child labor in Africa as a which different senior operations officer for the World Bank, agrees with Dottridge and urges a realistic approach to child labor in Africa. agencies have "Child labor is so widespread that it cannot be eliminat- ed in the short term," Tovo says. "The families and the countries are so poor that they simply need the chil- dren's labor. So what we can do is to make sure that child labor is not harmful to the child." had and to Tovo insists that the quality of education must be apply the improved. "As it is, it is often not useful for the children to go to school, because they do not learn anything," she says. "Many schools are without a blackboard, books, or light ­ and the classes are of 100 children of lessons to help different ages. Under such circumstances it does often make more sense for the kids to work." the children." 34 35 Sound Labor Practices and the Bottom Line: The Private Sector Addresses Harmful Child Labor Photo: T he growing debate over globalization has led Lotte many businesses to recognize the need to become better corporate citizens. A business Lund becoming a better corporate citizen is not only benefi- cial to society in general, it can also mean improvements to the business's bottom line. One instance of this is the elimination of harmful child labor. Eliminating harmful child labor may have once been thought of as merely a means of protecting corporate reputation, but businesses now recognize that harmful child labor can hinder the development and long-run viability of the private sector in a country by limiting its human capital, ultimately the most important asset in a nation's economy. Acknowledging these facts, some private sector compa- nies have begun implementing innovative approaches designed to combat or remediate the effects of harmful child labor. The International Finance Corporation (IFC),the private investment arm of the World Bank Group, is promoting such efforts by ensuring that its clients (companies in which it takes an equity or debt interest) both are aware of the risks of harmful child "Our clients helped to raise our awareness of the importance of labor practices and are equipped to play a role in elimi- reaching out to the informal sector, where the risk of child labor nating them. is greatest," says Harry Pastuszek, a consultant at the IFC. The IFC's work in this area began in March 1998 when The terms of the policy statement made clear IFC's its board of directors, jointly with MIGA's board, intention not to support or condone the use of harmful approved a Policy Statement on Forced and Harmful child labor in any of the projects in which it invests. Child Labor. It states that IFC will not support projects However, the terms "harmful," "child," and "labor" are that use forced labor or harmful child labor. In addition, often difficult to define and have been the subject of IFC will only work on projects that comply with the controversy. To remedy this shortcoming, IFC's national laws of the host countries, including those that Environment Division published an Interim Guidance protect core labor standards and related treaties ratified Note and commissioned a global study of the issue to by the host countries. Harmful child labor, according to inform the drafting of more thorough guidance. the policy statement, consists of "the employment of children that is economically exploitative, or is likely to Under the leadership of Martyn Riddle, associate direc- be hazardous to, or interfere with, the child's education, tor of the Environment Division, and Glen Armstrong, or to be harmful to the child's health, or physical, men- head of the Environment and Social Review Unit, the tal, spiritual, moral, or social development." study commenced in April of 1999 with field trips to Kenya and Uganda. Visits to Nepal, Pakistan, India, Sri Lanka, Indonesia and the Philippines followed. The pur- pose was to study not only the nature of child labor in these particular countries, but also to see how IFC clients, and the private sector generally, were dealing with the issue. The teams held meetings with NGOs, interna- 36 tional agencies such as UNICEF and the ILO, govern- ment agencies, labor unions, business associations, IFC clients and other members of the private sector. On a recent mission to Brazil, the team shared the draft guidance document with IFC clients, other corporate The study revealed that IFC's investments are generally representatives and interested government and interna- not at risk for the direct employment of children tional agency officials. On the whole, those consulted because its clients belong to the formal sector of the felt that the supply chain measures were reasonable, but economy rather than the informal sector, where child echoed the belief that for IFC to really make a differ- labor is most commonly found. Nonetheless, the ence it must take steps to change the culture of the absence of child labor in their own workforces does not informal sector in the places where it invests. insulate clients from the reputational damage that occurs upon discovery of harmful child labor in the sup- "We went to Brazil half expecting clients to tell us that ply chain. More importantly, the studies indicated that asking them to control labor practices in their supply for IFC to play a role in eliminating harmful child labor, chains was unreasonable. Instead they told us, `Nice try, it must reach beyond its client base to effect change in but we'd like your help in really working to solve this the area of greatest concern -- the informal sector. problem,'" said Harry Pastuszek, a consultant working to prepare the guidance document and resource tools. The global study produced Harmful Child Labor Those consulted pointed out that even when an IFC Guidance that seeks to address these supply chain issues client's contractors certify that their operations are free while also making clearer the terms of the policy state- from harmful child labor, this does little to reach the ment. The preparation of the guidance, now in final informal sector, where both the risk of child labor and draft form, has been shepherded by IFC Social evasion of government control is greatest. Suggestions Development Specialist Kerry Connor. The guidance to remedy this situation mainly centered on IFC taking recognizes that not all work done by children under the advantage of its relationships with the private sector age of 18 is harmful, and looks to guidance from ILO in around the world to raise awareness of the harmful suggesting the acceptable parameters for work done by effects of child labor and to assist clients in sponsoring those over the legal minimum age, but under 18. It programs aimed at alleviating poverty and improving does, however, forbid the employment of anyone under educational opportunities. 18 under harmful circumstances such as all forms of slavery or bondage and work which, by its nature or the As a development bank, IFC must work with and circumstances in which it is carried out, is likely to harm through its clients to contribute to the elimination of the health, safety or morals of children. The guidance the root causes of child labor -- poverty and lack of calls on IFC clients to ensure that their own operations educational opportunity. Whether all work done by are free from harmful child labor and to make best people under 18 is harmful is sure to be debated for efforts to ensure that their contractors abide by the stan- years to come. In the meantime, children will continue dards as well. In addition to explaining the specific to work, sometimes under the most harmful conditions, requirements of the policy, the guidance includes due to desperate poverty. IFC is committed to pursuing resource tools designed to assist IFC clients in combat- practical means through which it and its clients can go ing harmful child labor in their supply chains and tak- beyond ensuring child labor-free workplaces to alleviat- ing action when it is discovered. It includes advice on ing the need for children to work in the first place. networking with NGOs skilled in their particular areas of interest, examples of contractor codes of conduct and Based on feedback from its clients, IFC's Environment details on the definitions of the terms "harmful," Division is currently considering pilot projects in certain "child," and "labor." countries designed to facilitate client-led programs tar- geted at poverty alleviation and education. These pro- grams will likely require clients to work in partnership with skilled NGOs and appropriate government agen- cies and IFC is standing by to play the role of facilitator and to offer guidance to clients as needed. IFC's private sector clients believe they can play a part in eliminating harmful child labor and IFC is committed to giving them the tools and information to do just this. IFC Social Development Specialist Lund Kerry Connor has shepherded the Lotte Harmful Child Labor Guidance, Photo: which is now in its final stages. 37 The World Bank and Partnerships The World Bank believes that no institution acting alone can solve the problem of child labor, given the massive resources required. This enormous task requires close partnership with the key actors to avoid duplication, and exercise selectivity to work in our areas of comparative advantage. The World Bank also recognizes that, while international development institutions can play an impor- tant role, it is countries themselves that must shape their own destinies. Priorities must be identified at the country level, and will differ from country to country, while the Bank and other partners work to assist the countries with financial resources, knowledge and information. (for more, see www.worldbank.org/childlabor) UNICEF is the specialized United Nations agency for The International Confederation of Free Trade the advocacy and the protection of children's rights. It Unions (ICFTU), working within the ILO/IPEC works to help children, meet their basic needs and to framework uses a three-pronged strategy for the elimina- expand their opportunities to reach their full potential. tion of child labour: (i) the need for the increased A joint collaboration is underway in Yemen where investment in education and vocational training, (ii) UNICEF and the World Bank have developed a project adult job creation programs to help raise family on children's welfare. (for more, see www.unicef.org) incomes, and (iii) the enforcement of legislation based on international labor standards. The ICFTU and the Photo: The International Programme on the Elimination of World Bank continue consultations and explorations for Child Labour (IPEC) is the International Labour joint endeavors. (for more, see www.icftu.org) Eliane Organization's (ILO) major activity in this area. Its aim Custódio is the phased elimination of child labor by strengthening Civil Society the capability of countries to deal with the problem. The World Bank and the Global Child Labor Program The ILO and the World Bank are in close consultations recognize the important role that nongovernmental to strategize international efforts to combat child labor. organizations play in meeting the challenges of develop- (for more, see www.ilo.org) ment and explores any opportunity to work with the civil society and local, national and international NGOs, The International Organisation of Employers (IOE) such as Save the Children, Anti-Slavery International, adopted a Resolution on Child Labour which commits and World Vision. (for more, see its member federations to work towards the progressive www.savethechildren.com, www.antislavery.org, elimination of child labour beginning with the immedi- www.worldvision.org). ate end to its most exploitative forms. It has also devel- oped an "Employers' Handbook on Child Labour" to serve as a guide for employers' federations in the formulation of policies and programs for the elimination of child labour. A number of IOE members are implementing programs on this issue and are already engaged in a dialogue with the World Bank. (for more, see www.ioe-emp.org) Development requires partnership with those whose interests are most affected by policy changes, like here in a Bolsa Escola program in Brazil. 39 SPectrum's Resource Guide To comment on or to request additional information on the World Bank's Global Child Labor Program, please contact: Contact Information The Global Child Labor Program The World Bank MSN G8-820 1818 H St., NW Washington, DC 20433 USA E-mail: childlabor@worldbank.org Telephone: +1 202-473-6974 Facsimile: +1 202-522-3252 Visit the website: www.worldbank.org/childlabor Zafiris Tzannatos Leader, Global Child Labor Program Ptzannatos@worldbank.org Bona Kim bkim4@worldbank.org Social Protection Discussion Papers related to Child Labor: Creating Partnerships with Working Children and Youth Social Protection Discussion Paper No. 0021; Publication Date: 08/00 Uncertainty About Children's Survival and Fertility: A Test Using Indian Microdata Social Protection Discussion Paper No. 9931; Publication Date: 12/99 Child Labor and Schooling in Africa: A Comparative Study Social Protection Discussion Paper No. 9916; Publication Date: 07/99 Child Labor and School Enrollment in Thailand in the 1990 Social Protection Discussion Paper No. 9818; Publication Date: 12/98 Please note that all Social Protection Discussion Papers are available on the web at http://www.worldbank.org/sp. Questions and requests for free copies of publications concerning the World Bank's work in Child Labor and other Social Protection issues may be directed to: Social Protection Advisory Service The World Bank 1818 H Street, N.W., Room G8-138 Washington D.C. 20433 U.S.A. Telephone: + 1 202 458 5267 Fax: + 1 202 614 0471 e-mail: socialprotection@worldbank.org SPectrum is published four times a year by the Social Protection Unit of the World Bank. SPectrum is intended to raise awareness and enliven debate and present the latest thinking around social protection issues including pensions, labor markets and social assistance. The views presented in the articles are solely those of the authors and do not reflect the views if the World Bank. Articles appearing in SPectrum may be reproduced or reprinted provided the author(s) and SPectrum are cited and a courtesy copy is provided to SPectrum. Submissions, letters and story ideas are welcome and may be sent to: Lotte Lund, Editor Social Protection Team The World Bank 1818 H Street, NW Washington, DC 20433 USA Tel: +1 202 473 1143 Fax: +1 202 522 3252 Email: llund@worldank.org Social Protection Human Development Network The World Bank 1818 H Street, NW Washington, DC 20433 USA